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Migrant	Integration	in	Finland:	
Policies	and	Practices
Villiina	Kazi
Ministry	of	Economic	Affairs	and	Employment,	Finland
International	conference „Integration Challenges in	a	Radicalizing World“
29	– 30	November	2016,	Tallinn,	Estonia
212/23/16
Migrant Integration in Finland:
Policies and Practices
VilliinaKazi
Senior Specialist
Ministryof Economic Affairs and Employment
Topics
• An overall description of the Finnish integration “model”
• Effectiveness of integration measures in the light of recent
research results
• Novel approaches in labour market integration policies and
measures in Finland
• Challenges for effective integration policies
312/23/16
Migration Trends in Finland
• Until 1990 migration to Finland was diminutive
• Immigration doubled from 2000 to 2010
• Main grounds for immigration: family ties,
work and studies
412/23/16
6492
9102
18212
21414
0
10000
20000
30000
1990 2000 2010 2015
Immigration to Finland,
foreign nationals
• International protection configured appr. 10 per cent
of immigration until 2015
• Currently 230 000 foreign citizens (330 000 foreign
language speakers) reside in Finland
• Rapid employment and utilization of migrants’know-
how more extensively are of critical importance..
• .. while priority lies in enabling immigrants’extensive
participation in Finnish society in all spheres of life
The Finnish Integration ’Model’
• Participation in the labour market is one of the most significant factors favouring long-term
integration into society
• Legislation on Integration into force in 1 May 1999 (renewed in 2010)
512/23/16
• The successful labour integration will also
counter some of the adverse fiscal effects of
population aging
• The Ministry of Economic Affairs and
Employment is responsible for the
integration of immigrants, integration
legislation and promotion of employment
among immigrants.
Year of immigration
Age
The Finnish Integration ’Model’
• Participation in the labour market is one of the most significant factors favouring long-term
integration into society
• The successful labour integration will also counter some of the adverse fiscal effects of
population aging
• The Ministry of Economic Affairs and Employment (MEA) is responsible for the
integration of immigrants, integration legislation and promotion of employment among
immigrants.
• New legislation into force in 1 May 1999 (renewed in 2010)
• Stage One: Initial Assessment
• Assessing migrant’s education, work experience and language skills
• Provides a preliminary assessment of the measures and services promoting integration
and employment
• The initial assessment is started by the municipality (for those outside work force) or
the Employment and Economic Development Office (appr. 90% share)
• Families are provided with counselling on services directed to families in particular
612/23/16
The Finnish Immigration Model
• Stage Two: Integration Plan
• Prepared after the initial assessment
• Details the measures that will aid in one’s integration
• To be created no later than three years after receiving the first residence permit or
registering residence in Finland
• Prepared with a counsellor at an Employment Office or at a Social Office (for those not
eligible for labour force, e.g. stay-at-home parents)
• Maximum duration for an integration plan is three years (can be extended on individual
grounds)
• Once the integration plan is in force, one can obtain labour market subsidy
• Adherence to the plan and participation in measures agreed in the plan are prerequisites
for receiving the labour market subsidy
712/23/16
The Finnish Immigration Model
• Stage Three: Integration Training
• Aim is to facilitate fast and smooth employment and provide the immigrant with skills
and knowledge for active, participative citizenship
• Integration training includes
• Finnish or Swedish language training,
• social, cultural and life-management skills
• if necessary, reading and writing skills
• Integration training can also include vocational or practical training, preparatory
vocational training, completing previous studies, or a recognition of a degree
812/23/16
Integration Training (rough model)
912/23/16
Language and cultural
training (appr. 1 yr)
Preparatory course for
vocational training
Vocational
training
Recognition of a
degree
(required e.g. in
health care)
Basic education (if no
comprehensive school
leaving certificate)
Literacy training (for
the illiterate)
E
m
p
l
o
y
m
e
n
t
Completing
previous studies
Integration measures in light of research
• Due to small number and late arrival of immigrants, research still not extensive
• Quantitative research based on statistical analysis of register data
• M. Sarvimäki: Integrating Immigrants: The Impact of RestructuringALMP(2014)
• E. Kostiainen, S. Laakso: Employment and Income of Migrant PES-customers (in Finnish) (2014)
• J. Tervola, J. Verho: Immigrants as Recipients of Social Benefits (in Finnish) (2013)
• Key findings
• Employment:
• Employment improves significantly over longitudinal period
• Work experience acquired in Finland the main predictor for employment (more than three
years of acquired work experience in Finland increase income by more than 40% over 10-year
period)
• Finnish labour market highly etnicised and gendered for migrants: Men and migrants from EU
and other Western countries much more likely to find work corresponding their qualifications;
women and migrants from non OECD-countries considerably less likely
• Short-term employment significantly increases the likelihood of achieving permanent
employment later
1012/23/16
Integration measures in light of research
• Income:
1112/23/16
Migrant
incone
relative to
Finnish
citizens Year of immigration
Years of residence
• Integration legislation introducing integration plans has
increased immigrant income by 47% and decreased social
benefits received by 13% within 10-year period
• Effects are interpreted to result from the altered
content of integration measures (less traditional job-
seeking counseling, more emphasis on language and
vocational training)
• Income of those having immigrated on grounds of
studying, marriage or spousal employment did not differ
from those having arrived on refugee,asylym or family
unification criteria when other factors have been controlled
for
• PES-measures:
• Most effective PES-measure is vocational degree acquired in training in Finland (30% income
increase)
• Participating in specific training modules for immigrants has a positive effect on income
accumulation,whereas the effect of more general job-seeking counselling is negative
New approaches
to integration policies and measures
• Investment Impact Model
• Aim is to expedite employment
• Model based on private funding
• Private service providers will be reimbursed with profit if the predetermined emplyment targets are
reached
• Four months of language training (previously one year), then employment (plus simultaneous language
training)
• Impact analysis (randomised control group)
• Combining vocational and language training
• Training for e.g. care assistants, car mechanics, bus drivers, construction
• Skills/know-how recognition
• More frequently (to all PES -integration customers)
• More extensively (beyond formal recognition)
• More standardised process
• Regional needs evaluation
• Matching refugees’skills with regional labour shortages
• Assessing the professional skills of asylum seekers at reception centres while they are awaiting their
asylum decisions.
• The outcomes of assessment will be taken into consideration when choosing a settlement area that
offers education and business opportunities that match their skills
12/23/16 12
Challenges still remain
• Work experience acquired in Finland the main factor in immigrant employment
• To increase work experience, foreign PES-customers may need to be encouraged accepting work
not matching their expertise/qualifications and/or outside their current residence
• Labour subsidies for employing migrants in early phase of immigration?
• Apprenticeship an effective path to employment for migrants, yet considerable shortage of
apprenticeships (insufficient incentives for small and medium size businesses)
• Shortage of language courses combining work-oriented activities to expedite transition to
employment
• Foreign degrees have a limited effect on employment
• Employers have relatively low regard for foreign degrees
• Shortage of vocational training targeted for migrants
• Alternative assessment methods (for prior learning) needed for those without documentary proof
of qualifications
1312/23/16
Challenges still remain
• Labour market rigidity
• Many professions require recognition of the foreign credentials before allowing migrants to be
able to perform the job, hindering them from working in the job for which they have been trained
• ”Qualification-intensive” labour market (formal qualifications needed even for low entry jobs)
• Controversy on targeted entry subsidies
• Women remain under utilized
• Process rigidity
• Long processing periodsfor permits (esp. asylym seekers) pluslengthiness of the “official
integration path” delay employment
• “Grand designs” vs.service execution (grass root experience)
• Beside official recognition and qualifications,need for flexibility to accommodate individual skills
(methods of assessing informal learning and work experience)
• Other challenges
• Sparsely populated areas have difficulties having migrants stay after the cost-intensive integration
period
• Attitudes and discrimination
1412/23/16
1512/23/16
Kotouttamisen osaamiskeskus
PL 32, 00023 VALTIONEUVOSTO
Kompetenscentret för integration av invandrare
PB 32, 00023 STATSRÅDET
The Centre of Expertise in Immigrant Immigration
P.O. Box 32, FI-00032 GOVERNMENT, Finland
kotouttamisenosaamiskeskus@tem.fi
Presentation given at	International	conference
Integration Challenges in	a	Radicalising World
29	– 30	November	2016	in	Tallinn,	Estonia
For	more	conference	materials	and	presentations
please	visit www.misakonverents.ee

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Migrant Integration in Finland: Key Policies and Practices

  • 2. 212/23/16 Migrant Integration in Finland: Policies and Practices VilliinaKazi Senior Specialist Ministryof Economic Affairs and Employment
  • 3. Topics • An overall description of the Finnish integration “model” • Effectiveness of integration measures in the light of recent research results • Novel approaches in labour market integration policies and measures in Finland • Challenges for effective integration policies 312/23/16
  • 4. Migration Trends in Finland • Until 1990 migration to Finland was diminutive • Immigration doubled from 2000 to 2010 • Main grounds for immigration: family ties, work and studies 412/23/16 6492 9102 18212 21414 0 10000 20000 30000 1990 2000 2010 2015 Immigration to Finland, foreign nationals • International protection configured appr. 10 per cent of immigration until 2015 • Currently 230 000 foreign citizens (330 000 foreign language speakers) reside in Finland • Rapid employment and utilization of migrants’know- how more extensively are of critical importance.. • .. while priority lies in enabling immigrants’extensive participation in Finnish society in all spheres of life
  • 5. The Finnish Integration ’Model’ • Participation in the labour market is one of the most significant factors favouring long-term integration into society • Legislation on Integration into force in 1 May 1999 (renewed in 2010) 512/23/16 • The successful labour integration will also counter some of the adverse fiscal effects of population aging • The Ministry of Economic Affairs and Employment is responsible for the integration of immigrants, integration legislation and promotion of employment among immigrants. Year of immigration Age
  • 6. The Finnish Integration ’Model’ • Participation in the labour market is one of the most significant factors favouring long-term integration into society • The successful labour integration will also counter some of the adverse fiscal effects of population aging • The Ministry of Economic Affairs and Employment (MEA) is responsible for the integration of immigrants, integration legislation and promotion of employment among immigrants. • New legislation into force in 1 May 1999 (renewed in 2010) • Stage One: Initial Assessment • Assessing migrant’s education, work experience and language skills • Provides a preliminary assessment of the measures and services promoting integration and employment • The initial assessment is started by the municipality (for those outside work force) or the Employment and Economic Development Office (appr. 90% share) • Families are provided with counselling on services directed to families in particular 612/23/16
  • 7. The Finnish Immigration Model • Stage Two: Integration Plan • Prepared after the initial assessment • Details the measures that will aid in one’s integration • To be created no later than three years after receiving the first residence permit or registering residence in Finland • Prepared with a counsellor at an Employment Office or at a Social Office (for those not eligible for labour force, e.g. stay-at-home parents) • Maximum duration for an integration plan is three years (can be extended on individual grounds) • Once the integration plan is in force, one can obtain labour market subsidy • Adherence to the plan and participation in measures agreed in the plan are prerequisites for receiving the labour market subsidy 712/23/16
  • 8. The Finnish Immigration Model • Stage Three: Integration Training • Aim is to facilitate fast and smooth employment and provide the immigrant with skills and knowledge for active, participative citizenship • Integration training includes • Finnish or Swedish language training, • social, cultural and life-management skills • if necessary, reading and writing skills • Integration training can also include vocational or practical training, preparatory vocational training, completing previous studies, or a recognition of a degree 812/23/16
  • 9. Integration Training (rough model) 912/23/16 Language and cultural training (appr. 1 yr) Preparatory course for vocational training Vocational training Recognition of a degree (required e.g. in health care) Basic education (if no comprehensive school leaving certificate) Literacy training (for the illiterate) E m p l o y m e n t Completing previous studies
  • 10. Integration measures in light of research • Due to small number and late arrival of immigrants, research still not extensive • Quantitative research based on statistical analysis of register data • M. Sarvimäki: Integrating Immigrants: The Impact of RestructuringALMP(2014) • E. Kostiainen, S. Laakso: Employment and Income of Migrant PES-customers (in Finnish) (2014) • J. Tervola, J. Verho: Immigrants as Recipients of Social Benefits (in Finnish) (2013) • Key findings • Employment: • Employment improves significantly over longitudinal period • Work experience acquired in Finland the main predictor for employment (more than three years of acquired work experience in Finland increase income by more than 40% over 10-year period) • Finnish labour market highly etnicised and gendered for migrants: Men and migrants from EU and other Western countries much more likely to find work corresponding their qualifications; women and migrants from non OECD-countries considerably less likely • Short-term employment significantly increases the likelihood of achieving permanent employment later 1012/23/16
  • 11. Integration measures in light of research • Income: 1112/23/16 Migrant incone relative to Finnish citizens Year of immigration Years of residence • Integration legislation introducing integration plans has increased immigrant income by 47% and decreased social benefits received by 13% within 10-year period • Effects are interpreted to result from the altered content of integration measures (less traditional job- seeking counseling, more emphasis on language and vocational training) • Income of those having immigrated on grounds of studying, marriage or spousal employment did not differ from those having arrived on refugee,asylym or family unification criteria when other factors have been controlled for • PES-measures: • Most effective PES-measure is vocational degree acquired in training in Finland (30% income increase) • Participating in specific training modules for immigrants has a positive effect on income accumulation,whereas the effect of more general job-seeking counselling is negative
  • 12. New approaches to integration policies and measures • Investment Impact Model • Aim is to expedite employment • Model based on private funding • Private service providers will be reimbursed with profit if the predetermined emplyment targets are reached • Four months of language training (previously one year), then employment (plus simultaneous language training) • Impact analysis (randomised control group) • Combining vocational and language training • Training for e.g. care assistants, car mechanics, bus drivers, construction • Skills/know-how recognition • More frequently (to all PES -integration customers) • More extensively (beyond formal recognition) • More standardised process • Regional needs evaluation • Matching refugees’skills with regional labour shortages • Assessing the professional skills of asylum seekers at reception centres while they are awaiting their asylum decisions. • The outcomes of assessment will be taken into consideration when choosing a settlement area that offers education and business opportunities that match their skills 12/23/16 12
  • 13. Challenges still remain • Work experience acquired in Finland the main factor in immigrant employment • To increase work experience, foreign PES-customers may need to be encouraged accepting work not matching their expertise/qualifications and/or outside their current residence • Labour subsidies for employing migrants in early phase of immigration? • Apprenticeship an effective path to employment for migrants, yet considerable shortage of apprenticeships (insufficient incentives for small and medium size businesses) • Shortage of language courses combining work-oriented activities to expedite transition to employment • Foreign degrees have a limited effect on employment • Employers have relatively low regard for foreign degrees • Shortage of vocational training targeted for migrants • Alternative assessment methods (for prior learning) needed for those without documentary proof of qualifications 1312/23/16
  • 14. Challenges still remain • Labour market rigidity • Many professions require recognition of the foreign credentials before allowing migrants to be able to perform the job, hindering them from working in the job for which they have been trained • ”Qualification-intensive” labour market (formal qualifications needed even for low entry jobs) • Controversy on targeted entry subsidies • Women remain under utilized • Process rigidity • Long processing periodsfor permits (esp. asylym seekers) pluslengthiness of the “official integration path” delay employment • “Grand designs” vs.service execution (grass root experience) • Beside official recognition and qualifications,need for flexibility to accommodate individual skills (methods of assessing informal learning and work experience) • Other challenges • Sparsely populated areas have difficulties having migrants stay after the cost-intensive integration period • Attitudes and discrimination 1412/23/16
  • 16. Kotouttamisen osaamiskeskus PL 32, 00023 VALTIONEUVOSTO Kompetenscentret för integration av invandrare PB 32, 00023 STATSRÅDET The Centre of Expertise in Immigrant Immigration P.O. Box 32, FI-00032 GOVERNMENT, Finland kotouttamisenosaamiskeskus@tem.fi
  • 17. Presentation given at International conference Integration Challenges in a Radicalising World 29 – 30 November 2016 in Tallinn, Estonia For more conference materials and presentations please visit www.misakonverents.ee